TOWARDS A FEDERATED POLICE SYSTEM IN SOMALIA Good practices and lessons learned from the development and implementation of Somalia’s “New Policing Model” A state building example TABLE OF CONTENTS Table of Contents 3 Abbreviations and Acronyms 4 Prefaces 5 Executive Summary 10 1. Context 12 2. The New Policing Model in Somalia 17 3. Good Practices and Lessons Learned 28 4. Conclusions and Recommendations 32 Annex A: New Policing Model Agreement 34 Annex B: London Security Pact (Excerpt) 40 Annex C: Coordination Charts 41 4 Towards a Federated Police System in Somalia Abbreviations and Acronyms AMISOM African Union Mission in Somalia AU African Union CID Criminal Investigation Department CMIS Conference of Ministers of Internal Security CoPC Council of Police Commissioners DSA Daily Subsistence Allowance EU European Union EUPM European Union Police Mission FBI Federal Bureau of Investigations FGS Federal Government of Somalia FMS Federal Member State JTC Joint Technical Committee NLF National Leadership Forum NLSP Non-lethal Support Package NPM The New Policing Model NSA National Security Architecture PID Project Initiation Document PD Police Division RCMP Royal Canadian Mounted Police SCR Security Council resolution SG Secretary-General SPC Standing Police Capacity SPF Somali Police Force SNA Somali National Army SSR Security Sector Reform TC Technical Committee TC NPM Technical Committee for the implementation of the New Policing Model UN United Nations UNCT United Nations Country Team UNDP United Nations Development Programme UNHQ United Nations Headquarters UNOPS United Nations Office of Project Service UNSOM United Nations Assistance Mission in Somalia UNSOS United Nations Support Office in Somalia Towards a Federated Police System in Somalia 5 Prefaces n May 2017, the Federal Government of Somalia Iand its international partners met in London and committed to a ‘comprehensive approach to security’. This innovative approach places rule of law, community recovery and prevention of violent extremism at the centre of efforts towards sustainable security, alongside more traditional security activities such as the development of capable armed forces. Somalia’s transition towards sustained peace simply will not work without effective policing and access to justice. The launch of the New Policing Model has therefore been an important development, both towards effective policing and as a tangible component of Somalia’s political journey towards functioning federalism. The Security Pact signed at the May 2017 London Somalia Conference recognized the key role Michael Keating, of the New Policing Model in creating a framework Special Representative of the through which the Somali police services will be re- Secretary-General for Somalia organized on a federal basis. The cooperative relationship between the Federal Government of Somalia and the Federal Member States in adopting the New Policing Model is an encouraging example of functioning federalism, connecting a political model to real change for real people. We The implementation of the have already seen its impact in the contested city of Gaalkacyo, where joint patrols by Galmudug and New Policing Model has been Puntland state police officers have helped to maintain an entirely Somali-owned peace. The ability of Somalia’s politicians to put this model into action through the establishment of process, which the United functioning police services, working under civilian Nations has been proud to control and guided by the rule of law, will be a litmus support alongside AMISOM test for Somalia and its federal model. and our international The implementation of the New Policing Model has been an entirely Somali-owned process, which the partners. United Nations has been proud to support alongside AMISOM and our international partners. I congratulate our Somali counterparts for their commitment to this historic process and offer the sustained support of the United Nations and UNSOM Police in assisting Somalia to deliver a truly comprehensive approach to security. 6 Towards a Federated Police System in Somalia strengthening of the entire rule of law chain, Aincluding police, is a prerequisite for sustaining peace in Somalia. The Somali political agreement on a federal, rather than a centralized, police service was an essential starting point. It paved the way for building police services at community and state levels, to complement the existing federal police. Federalism provides a framework for national unity while recognizing the diversity of the nation, also in organizing security and rule of law institutions. A federated police system in Somalia enables the Federal Government and the Member States to work together to strengthen policing in the communities. Somalia is only at the beginning of reforming and rebuilding rule of law institutions across the country. This will require sustained political commitment. So far, the steadfast political will of Somali authorities Staffan Tillander, has enabled the implementation of the New Policing Director UNSOM ROLSIG Model. This work is now emerging as a good example for institution building in a federal Somalia and may very well serve as a model for other post- conflict environments. The international community has an interest and responsibility to engage and support those efforts. AMISOM, and its work on training and mentoring While AMISOM is providing Somali police services, has been a key contributor. UNSOM Rule of Law and Security Institutions Group support for the training of (ROLSIG) and the UN Country Team work as “One police men and women, the UN” to support institution building. Over the past year, UNSOM Police supported state led efforts UN is supporting Somalia across Somalia to lay down the strategic foundations to establish the political and for a rights-based police service delivery. All these efforts must fit together. While AMISOM is providing institutional framework support for the training of police men and women, that will ensure that the the UN is supporting Somalia to establish the political and institutional framework that will ensure trained police work within that the trained police work within sustainable sustainable structures. structures. Together we support Somalia on its path towards a democratic and fair, just and secure society that respects human rights. Somalia is just at the very beginning of this important journey. UNSOM ROLSIG looks forward to maintaining our close relationship with the Somali police and security institutions, and with the federal and state governments, as they are moving forward on this path. Towards a Federated Police System in Somalia 7 the Secretary-General, Security Council Resolutions and the Security Pact. As we all know from our experience in politically complex environments, often the implementation of such an agreement is even more complicated than brokering the agreement itself. The New Policing Model is no exception from this rule. In particular the federated structure of Somalia, giving federal member states the major responsibility on policing complicated the work the mission. This led to the fact that there was not only one partner to work with on the side of Somalia, but multiple ones instead. Since more than one year the officers of UNSOM are working closely with their local counterparts on developing the State Police Plans for each single federal member Stefan Feller, state. Obstacles, such as delays by the elections, lack United Nations Police Adviser of funding for activities, reluctance from different stakeholders and the general security situation had to be overcome. However, I am confident that the process will at the end bring the results that are in n my capacity as United Nations Police Adviser, the best interest of the Somali people. II am closely following the development of the United Nations Assistance Mission in Somalia This good practices and lesson learned document, (UNSOM) since its establishment in June 2013. which has been developed by the Police Component, It was the first newly established mission after I lays out how the colleagues have been approaching have been appointed by the Secretary General to the challenging task of supporting local authorities in oversee all police related issues within the United the development of a federated police structure. It Nations framework. UNSOM and the role of the proves once again that such a challenging objective Police Component within the mission have been can only be achieved in an inclusive way, involving unique from its very beginning. For the very first multiple partners, both from the international as time, a Police Component has been embedded in well as from the national level. It describes how an OROLSI structure, mirroring the structure within UNPOL has utilised external earmarked funding as Headquarters. The integrated structure, embedding well as contributions to the Multipurpose Trust Fund UNDP colleagues within the Police Component, has to achieve its final goal. It also elaborates on the proven to be a success over the last four years. importance of establishing coordination mechanisms in order to have all relevant partners working into However, the development in regards to policing the same direction. When I am handing over my issues has taken new traction over the course of duties to my successor at the end of 2017, I will refer the last two years in particular. From the end of to the UNSOM Police Component as a beacon of 2015 the efforts of the UNSOM Police Component success of the United